the balancer in the CONFIG can't be created. You should set LogLevel debug in httpd.conf and look in the CONFIG message.
The solution to this problem was to increase the Maxhost, Maxnode, and Maxcontext declarations in the httpd.conf file. If these values are not set, they default to extremely low numbers.
Please see this link for more information for http configuration settings: http://docs.jboss.org/mod_cluster/1.1.0/html/native.config.html#d0e570
I have run into the same error, can you show how you set the Maxhost, Maxnode, and Maxcontext declarations in the httpd.conf file.
I simply added the following lines:
Where xxx represents the maximum number of each item you'd like to have running at any given time.